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Resolution Number 92-6-16-6RESOLUTION NO. 92-6-16-6 A RESOLUTION OF THE CITY COUNCIL OF THE CITY OF SAN JUAN CAPISTRANO, CALIFORNIA, ADOPTING THE GROWTH MANAGEMENT PROGRAM AS A POLICY PLAN DURING THE INTERIM PERIOD PRIOR TO FORMAL ADOPTION OF A GROWTH MANAGEMENT ELEMENT TO THE CITY'S GENERAL PLAN AND CERTIFYING NEGATIVE DECLARATION WHEREAS, the City of San Juan Capistrano has initiated the preparation of an amendment to the General Plan that would incorporate a Growth Management Element; and, WHEREAS, the adoption of a Growth Management Element is required by the provisions of Measure M in order to qualify to receive funds distributed from sales tax proceeds collected in accordance with Measure M; and, WHEREAS, a draft element has been prepared for public review and comment in accordance with procedures of the California Government Code and the City's Municipal Code; and, WHEREAS, the City's Environmental Review Board has reviewed the initial study prepared for both the interim policy plan and draft Growth Management Element and has determined that these documents will not result in a significant impact on the environment and has issued a Negative Declaration; and, WHEREAS, the draft document will not complete this formal review process until after June 30, 1992; and, WHEREAS, the City currently has through its existing General Plan Public Safety, Public Facilities Elements and Circulation Elements policies that support the intent of Measure "M" and the new policies outlined in the draft Growth Management Element. NOW, THEREFORE, BE IT RESOLVED, that the City Council of the City of San Juan Capistrano does hereby certify the Negative Declaration and adopt the draft Growth Management Program attached and identified as Exhibit "A" policy plan based upon the following findings: 1. The interim policy plan is consistent with the overall goals, policies and objectives of the Circulation, Public Safety, Public Facilities and Utilities and other applicable elements of the General Plan. 2. The interim policy plan is consistent with the adopted Air Quality Implementation Plan as it relates to policies regarding Transportation Demand Management and jobs/housing balance provisions of the Air Quality Management Plan and provisions of Measure M. -1- 3. Development applications currently under review will comply with the level of service standards for both traffic and public services during the interim period prior to final adoption of the Growth Management Element. 4. The draft Growth Management Element is currently undergoing formal public review and is scheduled for formal adoption by City Council prior to August, 1992. PASSED, APPROVED, AND ADOPTED this 16th day of June , 1992. l ATTEST: CITY CLERK STATE OF CALIFORNIA ) COUNTY OF ORANGE ) ss CITY OF SAN JUAN CAPISTRANO ) I, CHERYL JOHNSON, City Clerk of the City of San Juan Capistrano, California, DO HEREBY CERTIFY that the foregoing is a true and correct copy of Resolution No. 92-6-16-6 adopted by the City Council of the City of San Juan Capistrano, California, at a regular meeting thereof held on the 16th day of June , 1992, by the following vote: AYES: Councilmen Friess, Hausdorfer, Harris, Vasquez and Mayor Jones NOES: None ABSTAIN: None ABSENT: None (SEAL) -2- pit . GROWTH MANAGEMENT POLICY An Interim Growth Management Policy for the City of San Juan Capistrano, California JUNE 1992 Thomas Tomlinson, Director Planning Department City of san 7-ian Capistrano 32400 Pas=o Adelanto San Juan C--)istrano, California 92675 (714)493-1171 Growth Management Policy -2- June 1992 OVERVIEW The City of San Juan Capistrano has few large remaining parcels that are undeveloped and which have not been approved for development. These development approvals are part of several larger Planned Communities. As a result a significant amount of review has occurred on designating the density, intensity and phasing of development over the coming years for their areas. However, as part of the fast growing south Orange County region, this City is strongly impacted by surrounding communities particularly as it relates to traffic congestion due to the location of Interstate 5. This major circulation link serves as the primary north -south connection between the Los Angeles, Santa Ana/Anaheim and San Diego employment centers. In addition to the above, the City receives many of its public services through independent agencies, including police, fire, library and health services from Orange County. Furthermore, the City is subject to several major County, regional and State growth management plans and laws independent from the City's adopted Residential Growth Management Program. PUBLIC FACILITIES AND SERVICES RELATED TO GROWTH MANAGEMENT The public facilities and services governed by the Growth Management Policy include traffic, police, fire, library, park, and flood control services. These services are discussed in more detail in the following sections. Traffic and Circulation: Under provisions of the Circulation Element a system of streets, bikeways and trails have been designated to move people and goods throughout the City and onto the regional transportation network. This system addressed the emphasis on a multiple network of approaches. This is reinforced by the following statement, "The City shall seek to provide a safe and efficient transportation and circulation system that minimizes the impact of the automobile, maximizes the use of public transportation and strives for a more adequate non -vehicular circulation system." Using the above goal, the City's circulation network identifies primary, secondary and local commuter roadways generally consistent with the Orange County Master Plan of Arterial Highways. The implementation of the primary and secondary arterial is specifically designed to facilitate regional movement of vehicles through the City. The local commuter street designation is designed to provide an internal linkage system that connects to the above mentioned regional street network. Growth Management Policy -3- June 1992 In regards to public transportation, the City continues to be a strong advocate of rail transit Taira emphasis has focused upun improvements, both existing and planned, for the Amtrak Depot located on Verdugo Street. That rail station encourages regional commuter trips as an alternative to single occupant vehicles. In addition, the City has developed a separate bikeway and hiking/ equestrian trails system to encourage residents and visitors to avail themselves of alternate transportation methods to conduct localized trips, thus reducing the dependence upon the automobile. Law Enforcement: The City of San Juan Capistrano receives law enforcement services under a contract with the Orange County Sheriff's Department. The station serving the City is located on Crown Valley Parkway in Laguna Niguel. Existing service levels in the City meet standards established by the Department. The Orange County Growth Management Plan Element requires that the cost of new facilities be borne by new development. Orange County has indicated that the station currently serving the City is temporary and will ultimately be replaced with a permanent facility. The location and timing of this replacement facility has not been determined. The need for any additional sheriff's facilities will depend upon the timing of future development within the sub -region, which is monitored by the County. The policies established herein require annual monitoring of police service levels to the City, including gang suppression units, neighborhood watch, etc. Because existing levels of police services are adequate, the City in consultation with the Orange County Sheriff's Department will constantly evaluate service levels and adjust where necessary to provide a safe community in which to work and live. Fire Service: The City receives fire protection under a contract with the Orange County Fire Department. Five fire stations including one within the City are available to respond to calls. The Fire Station No. 7 provides primary response with back-up from Dana Point, Laguna Niguel, and Mission Viejo. Existing fire service level in the City are adequate by the Department's standards. The Orange County Public Services and Facilities Element contains the following criteria for fire station site relocation: "...for 80 percent of the service area, first fire engine to reach the emergency scene within 5 minutes and paramedics to reach scene within 10 minutes". The policies of this program call for ongoing coordination with the County of Orange to ensure the continued provision of adequate fire Growth Management Policy -4- June 1992 protection services to the City. As a part of this cooperation the City has acquired and prepared preliulinary designs for the future relocation of Station No. 7 with expanded facilities to _ serve the City. Station 7 will eventually be relocated along Rancho Viejo Road adjoining the Marbella Commercial Center. Library Service: The City receives library services under contract through the Orange County Public Library System. City residents are served by the San Juan Capistrano Library located at El Camino Real and Acjachema Street. Based upon existing services standards of 0.2 square feet of library space per capita, the San Juan Capistrano Library is more than adequate to serve the City's projected resident population under the General Plan. Parks: The City has sought to provide abundant open space areas and through the Open Space Bond Measure passed by voters in June 1990, has acquired or is in the process of acquiring one -hundred and twenty (120) acres of public parkland. That parkland acquisition will supplement existing parks in the City. The City presently maintains about 42 acres of public park and the Open Space Bond Measure will increase the acreage to 162 acres. The City, as part its General Plan, has previously established a standard of five (5) acres of parkland for every one -thousand (1000) residents. With a current population of 28,000, the City will provide 5.78 acres per 1000 residents and exceed the General Plan standard. Floodplain Manaaement: The City of San Juan Capistrano, through its Floodplain Element, has adopted policies and implementation measures to protect life and property from 100 year floods of the major drainage basins represented by Oso, Trabuco and San Juan Creek. Any development that is proposed within designated flood hazard areas must comply with specific design standards to insure that the project and adjacent properties are not impacted by flooding. LOCAL GROWTH MANAGEMENT ISSUES As indicated previously, most major vacant parcels have been previously reviewed and approved as part of various designated "Planned Communities". These planned communities have been evaluated for the various on-site and off-site impacts upon public services. In response, each of these planned communities have included specific construction phasing and infrastructures improvement scheduling for all on and off-site improvements necessary to maintain adopted service levels. These major developments include the Lomas San Juan Planned Community, Forster Canyon Planned Community, Marbella Planned Community, and the Pueblo Serra Planned Community. Growth Management Policy -5- June 1992 Although the potential for significant new development applications is somewhat limited, the City's public services and facilities including its transportation system (rail and streets) will continue to be impacted by both local and regional movement of people and goods. As a result, the City will continue to implement various strategies to comply with adopted service levels of its General Plan. These various methods have been outlined in subsequent sections of this program and the City's existing residential growth management program is discussed below. xesiaentiai Growth Management Program: In 1976, San Juan Capistrano became the first City in the County to adopt a growth management program. This program phases residential development over an extended period of time in order to allow for the planning and funding of public improvements and utilities commensurate with the ability of the community to absorb the costs their growth inducing impacts. This program was implemented in response to specific provisions of the land Use Element. This program allows for an annual evaluation of the ability of the City to absorb residential growth in the community and to modify the pace of development in response to this review. However, in no instance can the number of residential building permits allocated in any calendar year exceed four -hundred (400) permits. REGIONAL GROWTH MANAGEMENT ISSUES The State, regional, and Orange County plans and laws affecting the City are varied and complex. They include the SLAG Growth Management Plan, State Assembly Bill 471, and Measure M (Orange County). Of all these, Measure M will have the most direct and significant impact upon the City's General Plan. Nevertheless, the other plans and legislation are important and must be addressed. SOUTHERN CALIFORNIA ASSOCIATION OF GOVERNMENTS (SCAG) GROWTH MANAGEMENT PLAN The SCAG Growth Management Plan recommends ways to redirect the region's growth in order to minimize congestion and better protect the environment. While that agency lacks the authority to mandate implementation of the Growth Management Plan, other agencies, such as the Air Quality Management District (AQMD), are authorized to mandate implementation of the Air Quality Management Plan, a program related to the Growth Management Plan which follows its major provisions. The Air Quality Management Plan mandates a variety of -easures to reduce traffic congestion and improve air quality, 'including the Growth Management Policy -6- June 1992 Regulation XV Commuter Program and the requirement of each jurisdiction to develop an implementation strategy to comply with the adopted Air Quality Plan. These and other measures must be implemented gradually over several years. The City has adopted an Air Quality Policy Plan to meet the requirements for local jurisdictions as identified in the regional Air Quality Management Plan. CONGESTION MANAGEMENT PLAN (AB 4711 Assembly Bill 471, subsequently modified by Assembly Bill 1791, requires every urbanized city and county with a population of 50,000 or more persons to adopt a Congestion Management Plan (CMP). A jurisdiction which does not comply with the CMP will loose gas tax revenues to which it would otherwise be entitled. Since the City of San Juan Capistrano has a population that even at total build -out under the General Plan will be substantially under 50,000, adoption of our own Plan is not required. However, the City is required to participate in the CMP which has been developed by Orange County. The City has and continues to work with Orange County staff on implementation of the Orange County CMP consistent with the requirements of AB 471, as amended. MEASURE "M" THE ORANGE COUNTY TRAFFIC IMPROVEMENT AND GROWTH Measure "M", the Traffic Improvement and Growth Management Initiative adopted by Orange County voters in November, 1990, requires each City and County to adopt a Growth Management Element according to specific guidelines. In order to be certified, each Growth Management Element must follow an established framework, which includes specifying traffic level of service standards, developing a seven-year capital improvements program, adopting a Transportation Systems Management Ordinance, adopting a local Pavement Management Program, participation in Growth Management Area inter -jurisdictional forums and adopting service standards for various public services. The purpose of the following Growth Management Program is to define goals and accompanying policies and implementation strategies to - ensure that local and regional growth issues, as outlined above, are comprehensively addressed: Goal 1: Develop a Growth Management Plan which ensures that growth and development are based upon the City's ability to provide an adequate circulation system and public facilities and services which preserves the City's quality of life and natural setting while also providing for its fiscal stability. Growth Management Policy -7- June 1992 Policy 1.1: Require that all new development projects participate in the construction of all necessary traffic and other facility improvements based upon the "Faire Share" methodology (City Council Policy 114, Adopted 7-16-91) in order to meet adopted levels of services criteria as a condition of development approval, except where an increased level of participation exceeding these requirements is established thought negotiated legal instruments. Policy 1.2: Develop a program to monitor new development to ensure compliance with adopted improvement construction phasing program and level of service standards. Policy 1.3: Require new developments to install all necessary infrastructure improvements necessary to transportation facilities prior to issuance of use and occupancy permits. For large scale developments a specific construction phasing and mitigation program shall be adopted and implemented where a project contributes measurable traffic imputes, must be constructed and completed to attain compliance with adopted Level of Service (LOS) at inter -sections for primary arterial, secondary arterial and local streets under the sole control of the City. Goal 2: Develop an Annual Review process to monitor existing facilities and identify projects and funding mechanisms necessary to maintain adopted service levels. Policy 2.1: On an annual basis develop a Seven -Year Capital Improvement Program to meet and maintain adopted service standards for traffic and public services. Policy 2.2: Prepare a Development Phasing and Annual Monitoring Program to ensure that service goals are achieved and to be implemented prior to June 30, 1993. Goal 3: Evaluate various programs and strategies to reduce the number of daily trips to and from employment centers. Policy 3.1: Promote traffic reduction strategies thought implementation of the adopted Transportation Demand Management Ordinance. Goal 4: Promote inter -jurisdictional coordination and cooperation on growth management issues with adjacent communities. Policy 4.1: Participate in intra -jurisdictional planning forms with adjacent communities to coordinate public improvement plans and new development applications to maintain regional traffic movements at adopted level of service Growth Management Policy -8- June 1992 standards. Policy 4.2: Require all new development to pay its share of the costs of mitigating traffic impacts, including regional impacts. Coordinate with other jurisdictions to determine acceptable impact fee levels. Goal 5: Establish levels of service to be maintained as development occurs in the City. Policy 5.1: Continue to implement the following level of service standards for law enforcement, fire, library, flood and parks and open space. service Level of service a. Fire First fire engine to reach emergency within five minutes and paramedics to reach the scene 10 minutes for 80 percent of City. b. Law Enforcement Deputy at the scene of an emergency call within five minutes, 50 percent of the time, and to all emergencies within eight minutes. Response to non -emergencies to be 15 minutes or less, 75 percent of the time. C. Library Two-tenths (0.2) square foot of library space per capita. d. Parks Five (5) acres of park per one - thousand (1,000) residents. e. Flood Insure that all new development is located outside 100 -year flood as determined by Federal Emergency Management Agency (FEMA) flood -plain maps. f. Traffic ADT link Volumes LOS C: Primary arterial, secondary articles and local streets. LOS D: Major arterials and state highways. Growth Management Policy f. Traffic (cont.) June 1992 Peak Hni Tntersection Volumes IAS D: Major arterials, state highways, primary arterials, secondary arterials, and local streets. IAS E: CMP -designated roadways only. Goal 6: Ensure that Growth Management Policies are internally consistent with the adopted General Plan goals and policies and maintain existing growth management efforts. Policy 6.1: Limit residential building permits to a maximum of four -hundred (400) permits in any calendar year (all residential developments of 12 units or more) as provided by Title 9, Chapter 7 of the Municipal Code. Policy 6.2: Continue to monitor the General Plan and its progress towards providing a jobs/housing balance (adopted Air Quality Implementation Plan, dated 9-17-91). IMPLEMENTATION MEASURES The following section lists the that are to be used to comply Witt this Growth Management Program. exhaustive and several additional of the annual review process. TRAFFIC LEVEL OF SERVICE GOALS major implementation strategies the policy directives listed in This list is not intended to be programs may be added as a part Policy 5.1 of this Element requires that development make necessary improvements to the circulation system to maintain acceptable LOS levels at intersections under City control. If existing segments are operating below acceptable service levels, the development improvements required shall be at a level that would either maintain or improve existing LOS levels. The LOS goals will be enforced through conditions of approval and monitored annually through the Performance Monitoring Program. Roadway segments that are currently operating below LOS policies and would not be subject to future development mitigation should be identified and included in the Capital Improvement Program. Growth Management Policy -10- June 1992 PUBLIC FACILITY STANDARDS Pursuant to Policy 5.1 the City has adopted policies to established performance criteria for law enforcement, fire service, library, floodplain management, parks and residential phasing of building permits. Future facilities will be determined as part of specific needs assessment. Impact fees will be considered on a pro -rated basis related to additional facility requirements necessary to off- set project specific impacts. DEVELOPMENT PHASING The purpose of development phasing is to insure that adequate infrastructure is added as development proceeds so that such facilities remain in balance with demand. In this City, the primary emphasis of development phasing is upon roadway improvements, traffic control, and extension of utility infra- structure. The City will continue to require development - construction phasing program for all large undeveloped areas. Said phasing programs will define the type, location, and construction schedule for installing necessary public improvements. In addition provisions will be included which would preclude development from continuing to subsequent phases until specific improvements have been completed. CAPITAL IMPROVEMENTS PROGRAM Major emphasis will be directed toward development and annual updating of a Seven -Year Capital Improvement Program that provides for identification of eligible projects for capital expenditures. Transportation improvements, including streets, bicycle lanes/paths, and equestrian facilities (alternate transportation modes) should be studied in conjunction with other major proposed capital outlays necessary to maintain or improve adopted service levels. PAVEMENT MANAGEMENT PROGRAM The City in addition to the long-term capital improvement program should implement a pavement management program that establishes a multi-year program for the maintenance of existing transportation facilities. The purpose of this program is to implement a strategy of preventive maintenance to prolong the useful life of existing facilities. Growth Management Policy -11- June 1992 SYSTEMS DEVELOPMENT TAY The City shall continue to impose a systems development tax upon new development at the set rate of 1t (one percent) of the building permit valuation. Said funds shall be allocated as part of the Capital Improvement Program. INTER -JURISDICTIONAL COOPERATION The City shall continue its involvement in the inter -jurisdictional coordination for various purposes, including: o Working with the Growth Management Area Inter - jurisdictional Forums to identify and fund traffic improvement projects that improve regional/sub-regional movement of people and goods. o Continue to be an active member and participant in the implementation of the San Joaquin Hills, Foothill and Eastern Transportation Corridors. o Continue participation with both regional and local jurisdictions to develop strategies for providing a job/housing balance at the sub -regional level. COORDINATION WITH ADJACENT JURISDICTIONS Apart from the above mentioned involvement with sub -regional inter - jurisdictional forums, the City will continue its practice to work separately with its immediately adjacent cities to develop mutual agreements for review and possible conditioning of development projects along with the coordination of capital improvement projects that benefit both jurisdictions. (C:\WP50\SP2\GP-IGMP.DR1)